RURAL PROSPERITY THROUGH THE ARTS & CREATIVE SECTOR - A Rural Action Guide for Governors and States - National Governors ...
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RURAL PROSPERITY THROUGH THE ARTS & CREATIVE SECTOR A Rural Action Guide for Governors and States
About the National Governors Association (NGA) and the NGA Center for Best Practices
The National Governors Association (NGA), founded in 1908, is the association through which the
nation’s governors share best practices and apply creative leadership to state issues. Its members
are the governors of the 55 states, commonwealths and territories.
The NGA Center for Best Practices (NGA Center) is the only research and development organization
that directly serves the nation’s governors and their key policy staff members. Governors rely on
the NGA Center to provide tailored technical assistance for the challenges that face their states;
identify and share best practices from across the states; and host meetings of governors’ staff
members, leading policymakers, program officials and scholars. Through research reports, policy
analyses, cross-state learning labs, state grants and other unique services, the NGA Center informs
governors about what works and highlights the lessons governors can learn from others grappling
with similar issues.
For more information about NGA and the Center for Best Practices, please visit www.nga.org.
Acknowledgments
This report was prepared by Sally Rood at the NGA Center for Best Practices with generous input
and editing from staff identified below from the National Endowment for the Arts (NEA), National
Assembly of State Arts Agencies (NASAA) and the NGA Center. The NGA Center wishes to thank the
NEA and its Acting NEA Chairman Mary Anne Carter for the NEA’s generous support of this Action
Guide. Mary Anne, along with other colleagues at NEA — Jennifer Hughes, Sunil Iyengar, Andi
Mathis, Bonnie Nichols, Laura Scanlan and Tom Simplot — provided invaluable feedback during
their review of report drafts. The team at NGA’s partner organization, the National Assembly of
State Arts Agencies — Pam Breaux, Kelly Barsdate, Paul Pietsch, Ryan Stubbs and Feby Varghese —
conducted significant background work and essential research, writing and editing. We appreciate,
also, the many state arts agencies, government officials and field experts who were consulted on
this topic — and who shared information, material and resources presented in the Action Guide.
Special thanks are extended to these additional contributors from the NGA Center: Mike Bartlett,
R. Kirk Jonas, Patricio Portillo, Martin Simon and Amanda Winters.
The report was edited by Erika Fitzpatrick of Church Street Editorial and designed by Andy Nolan
of Middour+Nolan Design.
January 2019
Produced in partnership with the National Endowment for the Arts
COVER PHOTO: In rural Wisconsin, Wormfarm Institute’s Farm/Art DTour – a self-guided
tour through more than 50 miles of Sauk County – features art installations highlighting
the fertility of the region’s farmland and creativity, including these corn cribs by Brenda
Baker from the 2012 iteration of the tour. PHOTO CREDIT: E. BAILLIES
CONTENTS
Executive Summary 3
Introduction and Background 5
Provide Leadership for the State’s Creative Sector to Benefit Rural Communities 13
Capitalize on Existing Regional Cultural Assets 21
Build the State’s Cultural and Creative Partnership Infrastructure 29
Develop Local Talent and Human Capital with Creative Skills 39
Create an Environment Friendly to Investment and Innovation 45
Conclusion 53
Appendix – Recommended Resources 56
Sunset at the Red Ants Pants Music Festival, an annual event that,
in 2018, attracted 18,000 people to White Sulphur Springs, Montana,
a town of about 950 people. According to a 2013 study, the event
generates nearly $3 million in direct economic activity. The Montana
Office of Tourism and Business Development named it the 2018
Event of the Year. Its proceeds support, through the Red Ants Pants
Foundation, rural communities and family farms and ranches.
PHOTO CREDIT: ERIK PETERSON
Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States • 1
A staircase mural created by high
school students in Eureka Springs,
Arkansas, for the town’s May Festival
of the Arts. The festival is an annual
month-long celebration of creativity
that draws residents and visitors alike
to the heart of the community for
numerous arts events and activities.
PHOTO CREDIT: EUREKA SPRINGS CITY ADVERTISING AND
PROMOTION COMMISSION
2 • Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States
EXECUTIVE SUMMARY
Rural America has a robust cultural history that has when applying the principles within their states’
enriched the nation and its people. Rural America policy framework. When implemented, these steps
is also beset with social and economic challenges. can contribute to positive changes in employment,
Population migration and persistent poverty are wages and quality of place in rural areas.
contributing to a widening urban-rural divide
This guide goes beyond simply advocating
in many states. By using the creative sector ―
replication, which would be difficult because of the
specifically, arts and cultural assets ― governors
unique circumstances of individual communities
have a viable approach for strengthening economic
benefiting from place-based initiatives that foster
opportunities and vibrancy into rural communities.
the creative economy. It also shares process steps,
Arts and culture have long been part of urban
examples and lessons learned from rural successes
rejuvenation efforts. Now, an expanding body of
and the research and field work that have built on
research and practice showcases positive economic
these successes.
and quality-of-life outcomes associated with the
rural creative sector.
Rural Systems Change Framework
This Rural Action Guide describes in detail the
The principles, examples and process steps make
principles of arts-based rural development,
up a systems change framework for rural America
including the following:
based on the creative sector which is summarized on
Creative sector initiatives are most effective when the next page. The rural systems change framework
attuned to the particular creative assets and is organized according to five key roles for governors
needs of rural communities. and states in “Rural Prosperity Through the Arts and
Creative sector initiatives work best as part of a Creative Sector.” Governors and states can:
cohesive economic development plan in rural Provide leadership for the state’s creative sector
areas. to benefit rural communities.
Creative sector initiatives add value when Capitalize on existing regional cultural assets.
integrated with additional state and local policies
Build state infrastructure for cultural and creative
and practices such as workforce development,
partnerships with other policy areas.
community development and housing.
Develop local talent and human capital with
This Rural Action Guide features many successful creative skills.
high-profile examples of rural communities and
regions that have become more economically Create an environment friendly to investment
resilient and sustainable through creative sector and innovation.
initiatives.
The Rural Action Guide gives governors and their
The examples offer process-oriented steps for advisors and staff the tools to both support and
consideration by governors and their policy advisors benefit from their state’s creative sector.
Now, an expanding body of research and practice showcases positive
economic and quality-of-life outcomes associated with the rural
creative sector.
Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States • 3
EXECUTIVE SUMMARY
Continued from previous page
RURAL SYSTEMS CHANGE FRAMEWORK
Governor/State Roles State-Level Actions
• Quantify and communicate the economic impact of the creative sector on the state’s rural areas to
inform policy decisions within the framework of this Rural Action Guide.
Provide leadership • Set a vision and determine concrete goals for catalyzing the creative sector when planning creative
for the state’s creative initiatives.
sector to benefit rural • Empower policymakers statewide by communicating the structure in place for programming related to
communities. the arts and culture.
• Support creative placemaking initiatives in rural areas with technical assistance (TA), peer learning
convenings and proactive collaborations. Share those best practices widely.
• Map assets in the state’s rural regions for use.
• Connect leaders in creative communities so that they can learn from each other and use their collective
resources.
Capitalize on existing • Reinforce local branding to help both visitors and resident entrepreneurs and businesspeople
regional cultural assets. reimagine their communities.
• Promote a cultural heritage perspective on rural tourism growth and development.
• Embed creative sector and placemaking initiatives into broader community planning and rural main
street development.
• Convene stakeholders to learn what each sector can bring to the table.
• Integrate the creative sector into existing state strategy and planning efforts, and embed those efforts
Build the state’s into larger state policy goals, such as economic development, housing and community development.
cultural and
• Align creative activities with existing private efforts that have similar aims; seed public-private
creative partnership
partnerships to use funding and investments.
infrastructure.
• Engage community and family foundations in creative sector activities.
• Use federal programs that offer funding, TA and models for accomplishing creative sector goals.
• Enhance arts-based entrepreneurial ecosystems by supporting artist entrepreneurs.
Develop local talent • Foster networks of creative entrepreneurs and cross-sector stakeholders.
and human capital with • Encourage rural community colleges to serve as anchors for creativity-based economic growth.
creative skills. • Articulate the strategic advantages of creative jobs.
• Design state programs that enable staff to conduct inclusive artist outreach and engagement.
• Make targeted investments in cultural and creative institutions in rural areas or small communities.
• Encourage the state legislature to allocate appropriations for statewide arts initiatives.
• Provide seed capital for arts and culture, such as small business assistance for arts entrepreneurs.
• Highlight creative sector businesses and initiatives as categories eligible for state rural development
Create an environment incentives and grants.
that is friendly to
investment and • Subsidize spaces such as studios, nonprofit galleries and theaters for practicing and presenting creative
innovation. products.
• Establish tax measures to enhance the creative sector.
• Advocate for historic tax credits as a state policy.
• Initiate state regulatory reforms to make it easier for artists to become entrepreneurs or for arts groups
to incorporate as social-impact nonprofit organizations.
4 • Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States
INTRODUCTION AND BACKGROUND
A robust body of research shows that the creative lack of investment in what makes rural places so
sector can help state economies thrive. The special: the people, artists and artisans, and cultural
arts, culture and creative sectors contribute to a organizations.
productive business climate, a diversified economic
States are seeking new and creative solutions to
base, a competitive workforce, a desirable quality
rural challenges. The arts and cultural sector can
of life and an innovation habitat. Such effects have
draw on unique cultural histories, people and places
long been documented in urban environments, but
that offer opportunities to create those solutions.
a growing body of research points to the power of the
creative sector to drive prosperity in rural settings,
too. This Rural Action Guide describes how the The Creative Sector Offers Solutions
creative sector is providing real economic benefits An extensive body of research by a variety of policy
to America’s rural places and what states are doing analysts, economists and scholars — highlighted in
to help communities develop and capitalize on their more detail in this introduction — points to arts and
own creative strategies. culture as economic development drivers. Since the
National Governors Association (NGA) last reported
The creative sector of the economy incorporates
on the contribution of the arts and culture to rural
the transactions of arts as well as cultural and other
economies, examples have become more abundant,
goods and services that result from creativity and
better metrics have been developed and more
have economic value. This Rural Action Guide may
rigorous impact studies have been conducted.2
use the phrases “creative sector” and “arts and
Also, cross-sector efforts are more widespread,
culture” interchangeably in some sections. Arts and
so measurement efforts are taking place in policy
cultural goods and services are widely understood
arenas outside the arts.
to be integral to any definition of the creative
economy. The text box on page 7 “Meet the Who of
the Creative Economy,” lists examples of creative The Creative Sector’s Contribution: National GDP
sector activities that economists track and measure. The National Endowment for the Arts (NEA), in
partnership with the U.S. Bureau of Economic
This introduction provides background on the issues
Analysis (BEA), annually produces national and
being addressed and on research illustrating economic
state estimates of the economic value of arts and
and related benefits of the arts to rural areas.
cultural production and measures the creative
aspects of multiple industries. Those estimates
The Problem: Rural Economies in Trouble show, for example, that:3,4
Rural America has a rich cultural history, but
¡¡ In 2015, the direct value the arts and cultural
recent economic shifts have made rural conditions
sectors added to the gross domestic product
challenging. Many rural areas have unique cultures
(GDP) exceeded $763 billion, or 4.2 percent.
to celebrate, yet they are also contending with
problems related to an evolving economy, including ¡¡ Together, these sectors employ nearly 5 million
the loss of industry, outmigration of young and workers.
skilled workers, rising poverty rates, health and
¡¡ In terms of value added to the U.S. economy,
health care barriers, educational attainment gaps,
the arts and cultural sectors contribute a
and physical and digital infrastructure needs.1
greater share than do mining, agriculture, the
These concerns are especially urgent for governors
energy/utilities sector or industries such as
who see rural communities rebounding more slowly
construction and transportation.
than metropolitan areas from the recession. Taken
together, these challenges have contributed to a
Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States • 5
Meet the Who of the Creative Economy value arts and culture added to each state’s economy,
with state employment and compensation figures.8
According to NEA, “There’s no business like
For each state, an accessible map on NEA’s website
show business — but art museums, fashion
features four data points:
design, and historic sites play special roles in
the economy, too.”5 ¡¡ Value of arts to the state’s economy.
“Arts and cultural production” includes the ¡¡ Arts’ value added as a share of the state’s
performing arts (music, dance, drama) as well economy.
as visual arts and the written word. “Culture”
¡¡ Total arts worker compensation in the state.
can be defined broadly to include elements like
beliefs and values, but the Arts and Cultural ¡¡ Total number of people employed in the arts in
Production Satellite Account (ACPSA) focuses the state.
on creative artistic activity.
In partnership with the Bureau of Economic Arts and Cultural Production in Rural States
Analysis (BEA), NEA developed the Arts and The value that the arts and cultural sectors added
Cultural Production Satellite Account (ACPSA) to the national GDP exceeded $763 billion. What
to measure the economic contributions of a was the value added to rural states and their
range of arts and cultural activities, including: workforces? In 2015, arts and cultural production
contributed $67.5 billion to the economies of states
¡¡ Music groups, dance troupes and theaters.
in which 30 percent or more of the population lives
¡¡ Natural parks, zoos and all sorts of in rural areas.9,10 The value added to North Carolina
museums. and Tennessee, which have the largest rural arts
economies, exceeded $13 billion in each of those
¡¡ Interior design, graphic design and
states.11 In South Carolina, Alabama, Kentucky,
photography.6
Oklahoma and Iowa, the value added was roughly
The NEA-BEA economic account also looks at $4 billion to $5 billion.12
the industries that support those activities,
Arts and cultural production in rural states employed
such as broadcasting, publishing, filmmaking
nearly 628,500 workers.13 In North Carolina,
and the manufacture of cameras and musical
employment for arts and cultural production
instruments.
topped 118,000 workers. In Tennessee, the arts
Data about arts and culture (and their employed nearly 84,700.14 Data on all 18 rural
supporting industries) include their states are codified in a 2018 NEA research brief.15
contributions to GDP and their output,
employment and compensation, both State-Driven Creative Economy Studies
nationally and by state. The range of ACPSA
Beyond the federal data, independent analysts
industries, cross-identified with the North
working for universities or advocacy groups have
American Industry Classification System,
conducted studies of the economic impact of states’
is summarized and accessible as a series of
creative sectors for at least 45 states.16,17
Microsoft Excel files available through the
BEA website.7
Further Delineating Rural Benefit
Until recently, studies estimating the size and impact
Creative Sector Contribution: State-Level Estimates of state creative sectors have grown alongside
In addition to producing national estimates, NEA theories, taxonomies and methodologies that were
and BEA have produced state-level estimates of the pioneered in largely urban contexts. Moreover, data
6 • Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States
sources have not focused on the arts’ role in rural What Is Rural?
economic development. Yet, several signs suggest
No universal definition of “rural” exists for
a growing momentum among researchers studying
policy considerations, but several ways exist
the ways rural and indigenous communities are
to describe “rural” for tracking, monitoring
benefiting from the arts and culture and also
and evaluation purposes. The many federal
contributing to them.
and state programs that serve rural areas
The text box “What Is Rural” on page 8 indicates how encompass a variety of definitions of “rural”
some key federal statistical agencies characterize based on U.S. Census Bureau blocks or ZIP
“rural.” For example, the U.S. Department of codes, among others:
Agriculture’s (USDA) Economic Research Service
The Office of Management and Budget
(ERS) has studied creative counties in an effort
delineates metropolitan statistical areas
to discern what they can tell about the creative
(MSAs), and having MSAs provides a way to
economy in rural America.18
delineate “rural” as anything outside MSAs.
States interested in collecting demographic, social
The U.S. Department of Agriculture’s Economic
and economic data for their rural populations face
Research Service (USDA ERS) uses MSA
a challenge in identifying geographic boundaries.
designations for research purposes, with a more
For example, population size may not be a sufficient
refined classification scheme that measures the
measure of rural character if other factors, such
relative rurality for each county in an MSA.
as distance or terrain, play roles. It is helpful to
understand a variety of measures — and when each At Census, “urbanized areas” have 50,000 or
is most appropriate. more residents and “urban clusters” have
2,500 to 50,000 residents; “rural” encompasses
More recently, NEA has collaborated with USDA ERS
areas not included in the other two categories.
to investigate the complex relationships among arts,
design and innovation in rural areas.19 This research NEA’s Our Town program refers to rural
is based on the Rural Establishment Innovation communities as having fewer than 50,000
Survey (REIS), the first nationally representative in population and as being isolated from
sample of innovation processes in rural businesses.20 metropolitan areas.
The REIS researchers found that rural arts
organizations are just as likely as their urban
¡¡ Rural arts organizations draw nonlocal
counterparts to be rated “substantive innovators.”21
audiences at higher rates than do urban arts.
The researchers posted further findings:
In other words, rural arts organizations report
that 31 percent of their audience travels
“beyond a reasonable distance” to attend
events, while the corresponding share that
South Carolina’s Colleton urban organizations report is 19 percent.
Museum, Farmers Market
and Commercial Kitchen ¡¡ In rural communities, the number of innovative
attracts nearly 20,000 visitors
each year to a community of or design-integrated businesses (that is,
about 5,500 residents. The those that use design services or trademark-
organization’s multipurpose
facility is a regional hub of and copyright-protected branding) rises
social, creative and economic proportionately in the presence of performing
opportunities. Its kitchen arts organizations.22 More specifically, the
alone has helped create 50 jobs
since it opened in 2015. probability that a business will be a substantive
PHOTO CREDIT: COLLETON MUSEUM, FARMERS MARKET
AND COMMERCIAL KITCHEN
innovator, based on the REIS methodology,
Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States • 7
rises from 60 percent in rural counties that are backed by other sources, too, and from a variety
host no performing arts organization to nearly of rural or small towns. Note the following examples:
70 percent for rural counties that host two to
¡¡ Whirligig Park in Wilson, North Carolina, has
three arts organizations. If the rural county
attracted more than $25 million in private
hosts four or more organizations, then the
development over the years. This money has
odds rise to 85 percent.
been invested within a two-block radius of the
¡¡ Businesses in rural counties that host two or art park, not counting the additional public
more performing arts organizations are at least and private investments in the local workforce
49 percent more likely to be design integrated and entrepreneurial ecosystem.26
than are businesses in other rural counties,
¡¡ A cultural district in Millville, New Jersey,
even after controlling for other factors.
called the Glasstown Arts District generated
Four accompanying NEA research briefs provide $30.8 million in private investment, $3.3 million
additional findings from the REIS research:23 in volunteer hours and $19 million in public
investment between 2000 and 2016.27,28
¡¡ Rural counties that are home to performing
arts organizations experienced population ¡¡ Paducah, Kentucky’s Arts Relocation Program
growth three times higher than rural counties achieved a 10-to-1 return on investment within
that lack performing arts institutions. 10 years — in addition to using abandoned
downtown spaces and being designated as
¡¡ Rural counties that house performing arts
a United Nations Educational, Cultural and
organizations provide residents with higher
Scientific Organization site.29
incomes (up to $6,000 higher) than are
reported in rural counties that lack performing
arts organizations. Rural Investments by State Arts Agencies and NEA
State arts agencies (SAAs), funded by state
¡¡ Rural counties that have design-driven
legislatures and NEA, invest heavily in rural areas
businesses recovered more quickly from the
as part of their ongoing work to strengthen
recession, showing more growth in weekly
communities through the arts. In fiscal year 2017,
earnings over a four-year period (2010 to 2014).
SAAs invested $49 million in 5,300 grants to rural
¡¡ Two out of three rural businesses report that areas. These funds (representing 23 percent of all
arts and entertainment are important for SAA awards and 14 percent of all SAA grant dollars)
attracting and retaining workers. went to schools, arts organizations, civic groups
and municipalities to support community arts
¡¡ Businesses that value the arts are more likely to
programs and creative sector activity.30 Through
report an expanding market for their products
this investment, state governments are important
and services.
influencers of rural development in partnership
with private investment, philanthropy, federal
“Rural Innovation Gets a Boost from the Arts . . . ” investment and local governments.31
These new data are changing public opinion about
NEA invests in rural (and other) towns and
rural issues. As recently as May 2018, Richard
communities across all of its grants programs.
Florida, economist-author of the highly influential
Through Our Town, its creative placemaking grants
book “The Rise of the Creative Class,” proclaimed
program, NEA supports arts, culture and design
(with reference to the USDA ERS and NEA data): “A
efforts that strengthen communities by advancing
growing body of research shows that innovative
local economic, social and physical outcomes. Arts,
businesses are common in rural areas, and rural
culture and design are uniquely positioned to:
innovation gets a boost from the arts.”24,25 Such data
8 • Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States¡¡ Bring new attention to or elevate key community In 2012, the NGA Center produced the report “New
assets and issues, voices of residents, local Engines of Growth: Five Roles for Arts, Culture and
history or cultural infrastructure. Design,” which focused on both urban and rural
areas.34 It found that:
¡¡ Inject new or additional energy, resources,
activity, people or enthusiasm into a place, ¡¡ Creative industry clusters are dynamic.
community issue or local economy.
¡¡ The creative sector makes traditional
¡¡ Envision new possibilities for a community or sectors (manufacturing and tourism) more
place — a new future, a new way of overcoming competitive.
a challenge or approach to problem solving.
¡¡ Place-based arts districts can reinforce
¡¡ Connect communities, people, places and entrepreneurial ecosystems.
economic opportunity through physical spaces
¡¡ Historic preservation and reclamation of
or new relationships.
abandoned spaces for the creative sector
Over the years of Our Town grants, small towns and improve quality of life.
rural community award recipients have been able to
¡¡ Integrating the arts and education better
address a range of community revitalization goals.32
prepares the workforce.
In 2018, the NGA Center convened national experts
An Emerging Framework for Systems Change and thought leaders for a roundtable discussion
In light of the latest data, trends and investments, a focused on what arts and culture are accomplishing
fresh look at rural economic development strategies in rural areas. Participants identified several creative
is particularly timely. The work of NEA and the Rural sector contributions, including:
Policy Research Institute as well as ongoing research
¡¡ Mitigating geographic isolation by building
by the NGA Center for Best Practices (NGA Center)
connections.
illustrate a framework for systems change.
¡¡ Diversifying regional economies by attracting
Recognizing the need for more strategic research
visitors, businesses and investment.
to fill gaps in the public’s understanding of arts
and entrepreneurship in rural communities, NEA ¡¡ Injecting pride and enlivening rural communities.
supports a research lab at the University of Iowa’s
¡¡ Improving quality of life.
Rural Policy Research Institute. This lab is working
to strengthen policymakers’ understanding of ¡¡ Promoting inclusivity.
the relationships and assets that define rural
In addition, because creative sector activities are
community wealth. Members of the lab have
scalable and adaptable, communities have been
produced an 11-point Rural Wealth Framework.33
able to take small steps initially to test proofs
Using this framework and refining it further, the lab
of concept and expand their arts and cultural
will analyze how cultural capital is created in rural
investments to grow the impact.
communities ― with “cultural capital” defined as the
“practices that reflect values and identities rooted In short, national experts agree that the arts, culture
in place, class and/or ethnicity” ― and examine and the creative sector make important contributions
the link between cultural capital and innovation to driving rural economic development, building
and entrepreneurship. For these analyses, three rural communities and changing the narrative of
complementary fields are integrated: (1) rural arts rural places.
and culture, (2) entrepreneurship and innovation,
and (3) comprehensive rural wealth.
Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States • 9This Rural Action Guide collective impact. The rural systems change
With this Rural Action Guide, the NGA Center framework supports five key ingredients for action
highlights the role that governors and states can by governors and their states:
play in bringing about creative sector-induced
¡¡ Provide leadership for the state’s creative
economic change in rural areas. Every state in
sector to benefit rural communities.
the nation; Washington, D.C.; and the five U.S.
territories have a publicly funded arts agency.35 ¡¡ Capitalize on existing regional cultural assets.
State agencies are often the implementers of
¡¡ Build state infrastructure for cultural and
state cultural policy, as determined by legislators
creative partnerships.
and governors, and can be valuable resources in
supporting rural economic development. ¡¡ Develop local talent and human capital with
creative skills.
The framework for rural systems change outlined
in this Rural Action Guide is based on several ¡¡ Create an environment friendly to investment
key principles: the importance of using existing and innovation.
regional cultural assets, supplementing regional
The roles and actions discussed in this Rural Action
economic development with creative initiatives and
Guide are summarized in the text box “Rural Systems
optimizing collaborations among state agencies
Change Framework” on page 11.
and outside investors and stakeholders for greater
National experts agree that the arts, culture and the creative
sector make important contributions to driving rural economic
development, building rural communities and changing the narrative
of rural places… With this Rural Action Guide, the NGA Center
highlights the role that governors and states can play in bringing
about creative sector-induced economic change in rural areas.
Farm/Art DTour, a program of the
Wormfarm Institute, features large-
scale art installations — including
this one created in 2015 — as well as
roadside poetry, interpretive signage
and “Pasture Performances” across
Wisconsin's rural Sauk County. The
Wormfarm Institute connects farming,
ecology and the arts to enhance both
the cultural and economic possibilities
of rural communities. It cultivates the
creative fertility of rural Wisconsin's
artists, farmers and entrepreneurs
through Farm/Art DTour and its other
programs, including Roadside Culture
Stands, which sell local produce and
artwork, and Fermentation Fest, an
annual 10-day celebration of “live
culture” in all its forms featuring the
work of farmers, chefs, artists,
poets and performers.
•
PHOTO CREDIT: PAUL GAUDYNSKI
10 Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and StatesRURAL SYSTEMS CHANGE FRAMEWORK (same framework as on page 4, reiterated for reference)
Governor/State Roles State-Level Actions
• Quantify and communicate the economic impact of the creative sector on the state’s rural areas to
inform policy decisions within the framework of this Rural Action Guide.
Provide leadership • Set a vision and determine concrete goals for catalyzing the creative sector when planning creative
for the state’s creative initiatives.
sector to benefit rural • Empower policymakers statewide by communicating the structure in place for programming related to
communities. the arts and culture.
• Support creative placemaking initiatives in rural areas with technical assistance (TA), peer learning
convenings and proactive collaborations. Share those best practices widely.
• Map assets in the state’s rural regions for use.
• Connect leaders in creative communities so that they can learn from each other and use their collective
resources.
Capitalize on existing • Reinforce local branding to help both visitors and resident entrepreneurs and businesspeople
regional cultural assets. reimagine their communities.
• Promote a cultural heritage perspective on rural tourism growth and development.
• Embed creative sector and placemaking initiatives into broader community planning and rural main
street development.
• Convene stakeholders to learn what each sector can bring to the table.
• Integrate the creative sector into existing state strategy and planning efforts, and embed those efforts
Build the state’s into larger state policy goals, such as economic development, housing and community development.
cultural and
• Align creative activities with existing private efforts that have similar aims; seed public-private
creative partnership
partnerships (PPPs) to use funding and investments.
infrastructure.
• Engage community and family foundations in creative sector activities.
• Use federal programs that offer funding, TA and models for accomplishing creative sector goals.
• Enhance arts-based entrepreneurial ecosystems by supporting artist entrepreneurs.
Develop local talent • Foster networks of creative entrepreneurs and cross-sector stakeholders.
and human capital with • Encourage rural community colleges to serve as anchors for creativity-based economic growth.
creative skills. • Articulate the strategic advantages of creative jobs.
• Design state programs that enable staff to conduct inclusive artist outreach and engagement.
• Make targeted investments in cultural and creative institutions in rural areas or small communities.
• Encourage the state legislature to allocate appropriations for statewide arts initiatives.
• Provide seed capital for arts and culture, such as small business assistance for arts entrepreneurs.
• Highlight creative sector businesses and initiatives as categories eligible for state rural development
Create an environment incentives and grants.
that is friendly to
investment and • Subsidize spaces such as studios, nonprofit galleries and theaters for practicing and presenting creative
innovation. products.
• Establish tax measures to enhance the creative sector.
• Advocate for historic tax credits as a state policy.
• Initiate state regulatory reforms to make it easier for artists to become entrepreneurs or for arts groups
to incorporate as social-impact nonprofit organizations (NPOs).
Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States • 11A shop in vibrant Blue Ridge, Georgia, a small mountain
community that has become a thriving cultural tourism
destination as a result of county support for the arts and
the coordinated efforts of the chamber of commerce,
private developers and arts groups.
PHOTO CREDIT: GEORGIA COUNCIL FOR THE ARTS
12 • Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and StatesProvide Leadership for the State’s Creative Sector to Benefit Rural Communities
The introduction to this Rural Action Guide noted the importance of the creative sector to rural economies.
To set the stage in their states for prosperous and creative rural communities, governors can:
Quantify and communicate the economic impact of the creative sector on the state’s rural
areas to inform policy decisions within the framework of this Rural Action Guide.
Set a vision and determine concrete goals for catalyzing the creative sector when planning
creative initiatives.
Empower policymakers statewide by communicating the structure in place for programming
related to the arts and culture.
Support creative placemaking initiatives in rural areas with technical assistance (TA), peer
learning convenings and proactive collaborations. Share those best practices widely.
This section explores each ingredient for action through successful examples from rural America.
Quantify and communicate the economic impact In addition to these quantitative data, the
of the creative sector on the state’s rural areas to Georgia Council for the Arts, in partnership with
inform policy decisions within the framework of the Georgia Municipal Association, interviewed
this Rural Action Guide. multiple individuals and compiled case studies on
how communities around the state transformed
Most states have assessed their creative industries
themselves through the arts. Gov. Nathan Deal’s
and related economic activity, and those
message in the resulting report is highlighted in the
assessments can help governors foster support
text box “The Value of Qualitative Data and Case
for rural economic development. According to
Studies” on page 14.
the National Assembly of State Arts Agencies’
Interactive Database of State Creative Economy At the time of the report’s release, the municipal
Studies, 45 states have invested in quantifying the association’s annual convention was devoted to
economic contribution of the arts statewide.36 Not integrating the arts with long-term economic and
many of these studies, however, have a geographic community development. The state arts agency
focus on rural areas. Understanding the scope and noted that its collaboration with the municipal
attributes of the creative economy in rural areas association on this project began a long term
provides an important baseline for measurement partnership between the two agencies to educate
and can inform policy decisions designed to expand and elevate conversations at the local level on
the creative cluster. arts based economic development. As a result,
the municipal association was a key partner in
Georgia is an example of a state that has used a
the Council for the Arts planning process, making
mixture of quantitative data and case studies. Based
it a stronger reflection of diverse voices within
on quantitative data, Georgia’s creative industries
the state’s communities. The quantitative and
represent 200,000 jobs, $10.5 billion in wages and
qualitative data gathering exemplified by Georgia
earnings and $37 billion in revenue.37 The creative
is essential for planning and communicating with
industries in Georgia account for 5 percent of all
other stakeholders as well.
employment and 6 percent of all business revenue
in the state.
Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States • 13The Value of Qualitative Data and Set a vision and determine concrete goals for
Case Studies catalyzing the creative sector when planning
An introductory message from Georgia Gov.
creative initiatives.
Nathan Deal in the report, “Leveraging Public Through the advisory groups, committees and task
Investment in the Arts” notes:38 forces they appoint, governors have played a key role
“This series of case studies, created through a in establishing a vision and goals for using the creative
partnership between the Georgia Council for sector to help rural economies. The policy visions and
the Arts and the Georgia Municipal Association,
influence governors have can be impactful, as seen in
demonstrates the power of the arts to improve
our local economies through strategies to examples from Virginia and Tennessee.
promote tourism, downtown development, In Tennessee, Gov. Bill Haslam created a Governor’s
entrepreneurism, community identity, and
quality of life.”
Rural Task Force to determine options for
strengthening the infrastructure and assets of rural
The Georgia Council for the Arts report, citing
communities and their regional economies.41 The
in-depth interviews conducted in seven
communities, further explains:39 governor created the task force to bring resources
together from a range of organizations to advance rural
“quantitative data alone can only provide so
much insight. Elected officials, civic and business communities and economic development throughout
leaders, and creative professionals need concrete the state. The governor said, “Our engagement will align
illustrations of how creative industries and artists public and private resources and offer new strategic
impact the economy in their communities. More initiatives to create transformative holistic solutions
importantly, providing examples has the potential in asset-based economic activities across rural
to inspire other elected and community leaders to
Tennessee. The Tennessee Arts Commission helped
explore options to incorporate the arts as part of
the economic development strategies employed in develop the placemaking recommendations for the
their own cities.”40 group’s final report.”42 One such recommendation is
for the state to develop a program managed by the
Tennessee Department of Tourist Development ― in
collaboration with the Tennessee Arts Commission
and other state agencies — to help rural communities
identify and market their cultural and recreational
assets to foster sustainable economic development.
In Virginia, the southwestern region of the state
enjoys heritage-based tourism centered on
traditional arts, crafts and music. The southwest
Virginia artisan network, called “Round the
Mountain,” had its origins in the Virginia Works
initiative of former Virginia Gov. Mark Warner who,
in 2004, supported efforts to develop that region
of the state as a cultural tourism destination.43
The network officially became a nonprofit in 2006.
Round the Mountain’s documented “history” notes
that it got its start thanks to Virginia Works initiative
funding through the efforts of Gov. Warner. Since
then, it has received grant funding from the Virginia
Shoppers enjoy arts and crafts for sale in downtown Blue Commission for the Arts and the Appalachian
Ridge, Georgia. The state’s creative industries account
for 200,000 jobs, $10.5 billion in wages and earnings and Regional Commission for projects to help local
$37 billion in revenue. artisans include their cultural assets in the
PHOTO CREDIT: GEORGIA COUNCIL FOR THE ARTS
14 • Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and Statesrevitalization plans for the rural downtown areas of
the region.44
Current Virginia Gov. Ralph Northam said, “Tourism is
a huge driver of sustainable economic development
for Southwest Virginia. The Round the Mountain
campaign continues to play a critical role in
showcasing what the region has to offer, connecting
travelers to local artisans throughout Southwest The authentic 100-year-old Floyd Country Store is one stop on
Virginia, and turning artisans into entrepreneurs Crooked Road, Virginia’s Heritage Music Trail, which had an
with education and marketing assistance programs.” annual economic impact of $9.2 million in the 19 counties of
southwestern Virginia in 2015. PHOTO CREDIT: CAMERON DAVIDSON
To build the artisans’ business and marketing
skills, Round the Mountain offers entrepreneurship
was estimated at approximately $9.2 million for 2015,
workshops, individual coaching and group
with more than 130 jobs created, according to Virginia
networking and discussions. The group’s education
Tech’s Office of Economic Development.47 There is so
campaign communicates the value of its members to
much interest in Round the Mountain that the network
the region’s community and business leaders. All this
now has to vet its artisans — an extraordinary
20+ concerts
step. In
has led to the development of 15 artisan trails in the
addition, the hotels and bed and breakfast spaces are
southwest region of Virginia, each of which identifies
working hard to accommodate theJune,
For nine days every influx
The of tourists
Crooked Road brims
for tourists the artisan studios, galleries, craft venues,
coming to the arts overand
with amusic
non-stopvenues. The
celebration state
of Southwest
eateries, vineyards and other cultural points of
makes $75,000 available intraditional
Virginia’s the statemusic,
budget tohistory,
craft, match cuisine
interest based on unique local heritage. and outdoor beauty through its Mountains of Music
other grants for sustaining the overall southwestern
Homecoming. Crooked Road performances take
These artisan trails work in tandem with Virginia’s Virginia initiative.48place in 20 mountain communities, alongside over 50
heritage music trail, called “Crooked Road,” which captivating cultural events. These performances and
features venues for traditional gospel, bluegrass and
Empower policymakers statewide by cherish and practice
events are the perfect way to experience an American
mountain music.45 Each of the trail maps from Round landscape where people
the Mountain and Crooked Road generates a picture
communicating thetraditions
structure in place
handed down forforgenerations.
of the vast creative sector that has developed and is
programming related
“Let to
thethe arts
Music and
Move culture.
You” is this year’s theme,
celebrating the ability of music to move us
now contributing to the economies of 19 counties Planning and programming for arts and cultural
in southwestern Virginia.46 For example, the annual initiatives differ from state to state, and an array of
economic impact of the Crooked Road (shown below) organizational structures exist for this purpose. Some
SW Virginia
2018 Crooked Road Concerts
The Crooked Road
Duffield
Nine extraordinary d
Virginia’s Crooked Road. This map of the Crooked Road shows the major venues (blue stars) and more than 50 affiliated
venues and festivals (red dots) in the Crooked Road region. The inset shows where the region is located within the
southwestern region of the state. MAP COURTESY OF THE CROOKED ROAD
Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States • 15states, such as Colorado, have cultural districts; Colorado’s creative district legislation provides a
others have uniquely designed state programs, such framework for standards of excellence intended
as Iowa’s Great Places initiative. Still other states have to compel communities to be responsible for
set up specialized decentralized structures for arts, their own process, so that the result is based on
as Pennsylvania has done. States can also establish the community’s unique assets, making it more
arts funding and organizing through existing regional sustainable over time. Once certified, the districts
planning and development agencies, as in Michigan. are eligible for grants of up to $10,000 for projects to
Each approach has advantages for rural geographies further develop their assets.51
and economic challenges in the state, and each is
discussed here. THE FOLLOWING STATES HAVE STATEWIDE
CULTURAL DISTRICTS. In 15 states (see the text CULTURAL DISTRICT CERTIFICATION OR
box on this page), the governor and state legislators DESIGNATION PROGRAMS:
have established statewide cultural district California Cultural Districts Program52
certification programs that formally recognize and Colorado Creative Districts53
support locally organized zones of artistic and Iowa Cultural and Entertainment Districts54
related commercial activities.49 Such programs Indiana Arts and Cultural Districts55
support these local cultural districts, also known as Kentucky Creative Districts56
“creative districts,” through grants, tax incentives, Louisiana Cultural Districts57
TA, information sharing, unified branding and Massachusetts Cultural Districts58
more. The cultural districts model facilitates Maryland Arts and Entertainment Districts59
connections among the arts, culture and commerce New Mexico Arts and Cultural Districts60
through cultural tourism, creative placemaking Oklahoma Cultural District Initiative61
and downtown revitalization, among other things; Rhode Island Tax-Free Arts Districts62
such a strategy can be effective for realizing rural South Carolina Cultural Districts63
economic development. Another benefit of being Texas Cultural Districts64
certified as a cultural district includes eligibility for Washington Certified Creative Districts65
special grants or state support in advertising. West Virginia Certified Arts Community66
Governors can help enhance the visibility of cultural
districts in their states. In Colorado, Gov. John States that do not have cultural districts may have
Hickenlooper has focused heavily on using creative other mechanisms in place to empower creative
industries to enhance local residents’ quality of sector decision making at the local and regional
life. Through its Creative Districts Program, the levels.
state arts agency, Colorado Creative Industries
STATE-DESIGNED CREATIVE SECTOR PROGRAMS.
certifies local cultural districts to help them use arts,
Some states have established uniquely designed
culture and design strategies to strengthen local
programs. The Iowa Arts Council, which is part of
communities and encourage investment in economic
the Iowa Department of Cultural Affairs, administers
development. Colorado now has 23 creative districts
a state program called “Iowa Great Places” “to
in both rural and urban communities around the
cultivate the unique and authentic qualities of
state.50 The program seeks to:
Iowa neighborhoods, districts, communities and
¡¡ Create hubs and clusters of economic activity. regions in order to make them great places to live
and work.”67 The program provides professional
¡¡ Promote a community’s unique identity.
development training and TA for placemaking
¡¡ Promote rural communities as appealing projects and grants averaging $185,000 to support
places to live, conduct business and attract infrastructure projects.
visitors.
16 • Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and StatesREGIONAL PROGRAMMING. When state arts
agencies work with existing regional planning and
development organizations in their state, that
work can yield a range of benefits to communities,
including economic, educational and social benefits.
For example, the Central Upper Peninsula Planning
and Development Regional Commission is one of
14 regional planning commissions in Michigan. It
supports the Upper Peninsula’s creative sector in
many ways:69
¡¡ As a regional regranting agency of the
The Waukee Railroad Pergola project received the Iowa Great Michigan Council for Arts and Cultural Affairs,
Places designation from the Iowa Department of Cultural Affairs it redistributes the council’s funding through
for its success in facilitating creative placemaking. The 350-foot-
long installation is a trailhead gateway and the centerpiece of a
minigrants that support the arts and cultural
regional plan to unify and develop the 89-mile rural Raccoon River activities in one of fifteen regions throughout
Valley Trail Corridor as a nationally recognized visitor destination. the state, determined by county.
PHOTO CREDIT: WAUKEE AREA CHAMBER OF COMMERCE
¡¡ Through its Regional Prosperity Initiative, it
Through a special designation, the Iowa Great awards $500 to $5,000 to local governments
Places program recognizes communities that and NPOs to help them initiate or improve
have established a local planning process and placemaking principles.70
demonstrated a vision that values their assets
¡¡ The commission supports Arts Midwest’s
while challenging the communities to set realistic
Upper Peninsula Arts and Culture Alliance, a
goals for advancing their quality of life. Several
broad-based network of artists and economic
rural communities have earned the Great Places
development stakeholders.71
designation. The designated communities are
expected to become active members of the Iowa These examples illustrate programming structures
Great Places Network, a forum for peer support and that states are using to support the arts and culture.
sharing best practices. It may be helpful to combine elements from each
approach and apply them to particular situations to
DECENTRALIZED PROGRAMMING. Fifteen state
test their applicability in new rural settings.
arts agencies have decentralized a portion of their
grant programs for creative projects. Some of those
arts agencies, including the Pennsylvania Council Support creative placemaking initiatives in rural
on the Arts, decentralized their grantmaking to areas with technical assistance (TA), peer learning
ensure that they support their entire state, including convenings and proactive collaborations. Share
rural communities. Through the Pennsylvania those best practices widely.
Partners in the Arts program, the council awards
State arts agencies are integrating their funding
funding to 13 local arts agencies that collectively
portfolios with interagency and intergovernmental
regrant funds to local artists and arts organizations
partnerships, convenings, TA and other resources.
in all 67 Pennsylvania counties.68 The program
Their work also benefits from collaborations with
structure empowers local decision making based on
outside partners. These partnerships and joint
community priorities, invites greater involvement
activities result in benefits for rural communities. In
by individuals in the processes and procedures
this regard, Indiana and New Mexico are highlighted.
for state arts funding, and supports rural and
low-income communities which may have been CREATIVE PLACEMAKING MECHANISMS AND
historically underserved. TOOLS. The Indiana Arts Commission’s strategic
Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and States • 17portfolio of policies and programs models a ¡¡ Technical Assistance: Communities that
strong leadership role for rural creative economic participated in the workshop were eligible
development through the state arts agency. to apply for “Open Scene Consultancy”:
While preparing its 2017–2021 strategic plan, 50 hours of consulting support for developing
the commission conducted a “rural situation a community-specific creative placemaking
assessment” to examine demographic trends that strategy. At least eight rural communities
affect the state; the assessment revealed a dramatic have received this assistance.78,79 The
workforce migration away from rural areas toward communities are in the process of designing
urban areas.72 The effects of that assessment and implementing their placemaking projects.
are now manifesting in policies and programs
¡¡ Toolkit: Complementing the workshop and
statewide. Several of the state’s seven certified
consulting is a comprehensive Creative
cultural districts are rural, so Indiana continues
Placemaking Toolkit, an online resource that
to advance creative rural economies through its
features practical information and project
cultural districts program.73,74 In addition, the Arts
inspiration for artists, community leaders and
Commission has now joined other agencies in
other stakeholders.80 It describes partnership
the state to position the arts and culture as vital
building, effective communication and the all-
ingredients for rural areas and small towns. This
important fundraising and includes a primer
comprehensive, multipronged approach includes
on creative placemaking ideas, goals and
the following key elements:
approaches. It also features case studies of
¡¡ Integrated Partnerships: The Indiana Office artist- and community-led projects and links
of Community and Rural Affairs consults to white papers and training opportunities
with the Indiana Arts Commission on available elsewhere.
implementing the interagency Indiana Stellar
In Indiana, as in other states, the field of creative
Communities program, which helps small
placemaking is considered a specialized version
and rural communities realize comprehensive
of community development. The work takes more
community and economic development
time and effort because it requires cross-sector
projects.75,76 This partnership enables the
partnerships and addresses community challenges
Arts Commission to work directly with
in a comprehensive way by using the arts, culture
communities to incorporate the arts into
and design strategies. Creative placemaking often
their economic development planning efforts.
Many communities that have participated
in the Stellar Communities program have an
increased its arts focus, and the commission
has recently expanded its role to provide more
proactive TA for creative placemaking and
creative economic development efforts.
¡¡ Convenings: The Arts Commission hosted
a creative placemaking workshop for small
and rural communities called “From the
Ground Up.”77 This high-energy day-and-a-half
workshop introduced the practice of creative
placemaking as a viable strategy for small and
The Tippecanoe Arts Federation’s Mural Art Initiative supports
rural Indiana communities and neighborhoods; public art installations throughout north central Indiana,
sessions focused on practical ways to get making rural community centers more attractive and vibrant
started. and helping improve local residents’ quality of life.
PHOTO CREDIT: INDIANA ARTS COMMISSION
18 • Rural Prosperity through the Arts and Creative Sector: A Rural Action Guide for Governors and StatesYou can also read
